Single loop learning is the most common type of learning and involves problem solving and improving the system but does not seek any answers as to why the problem arose. On the other hand Double loop learning uses feedback from past actions to restructure the set assumption patterns and seek alternative solutions. It is necessary for higher order problem solving and leadership. We see a series of such examples in our daily lives, which involve the use of single loop and double loop learning techniques.

As a part of this study we will be analyzing the use of these learning techniques in the implementation of e-governance projects and try to overview whether the replacement of single loop learning with the double loop learning techniques in these mission mode projects yielded better outcomes and results. The study will try to hit the target by being very specific and studying the RajSWAN (Rajasthan State Wide Area Network) Project.

The government’s aim behind the implementation of RajSWAN project was to establish an effective communication infrastructure and create a highway for electronic transfer of information in the form of voice, video and data between the various departments of the state machinery with an aim to improve the administrative efficiency and effectiveness of Government programmes and schemes thereby resulting in an improved quality of service to the citizen of this state. It also aims to strengthen the disaster management capacity. RajCOMP is a State designated agency, which has further selected Bharti Airtel Ltd. (‘Implementing Agency’) for the implementation of the RajSWAN project.

The figure clearly states the use of single loop learning technique in the creation of infrastructure readiness in the RajSWAN Project. The challenge was to prepare these PoP sites as per SWAN guidelines, layout diagrams and site preparation plans including civil, electrical, furniture work, bandwidth services and IT infrastructure equipment installation and Acceptance testing and allocation of funds for the entire state. Collection of data and appointment of office in-charge for these locations was also a big challenge.

Fig. 1 To fix the problem the Department of Information Technology, Government of Rajasthan used to follow the following process:
1. Allocate funds to district e-Governance societies and follow up through various letters including Official letters to district administration, departments and various stakeholders. There was no formal process/ mechanism to monitor the progress of preparation of these sites. No attempt was made to analyse and cater to the problems involved in this issue as to why the different administrative levels are not able to create these PoP’s. In the absence of a proper team, letters were the only medium through which this assignment was driven by government.

The result of this entire exercise involving the use of single loop learning was that the Project got delayed by 12 months from the date of purchase order and the agreement signing with the implementing agency was still pending due to non-readiness of the PoP sites and various technical issues at the Government of Rajasthan’s end.

DOUBLE LOOP LEARNING was then brought into immediate effect for the implementation of this project and for seeking a solution to the infrastructure bottlenecks. The following steps were identified: A Project Management Unit (PMU) was set up with a team of four members to resolve this issue. Proposals were invited from the various stakeholders including district administration, state departments, implementation agencies, IT consultants, Ministry of IT, DOT, DoIT based on which formal plans were prepared. The targets of infrastructure set up, given to the district administration agencies, were reviewed and set to realistic standards. Data related to various departments and vertical PoP sites were collected, analysed qualitatively and quantitatively and locations were finalized. Nodal officers for all the sites were appointed and an online portal was created wherein all the nodal officers were provided user credentials. The nodal officers were trained and asked to update the progress on daily/weekly basis in the portal. Regular video conferencing was conducted and the Collectors of districts who completed the site preparation work before time were rewarded, and the best practices followed by them were shared in the forums with other districts. Based on the feedback, three small teams consisting of 2 members each (1 person from the PMU) were formed. Prime responsibilities of these teams were to get the sites handed over in a lock and key condition to the implementing agency, capacity building/ awareness trainings of the departments/district administration and creation of awareness among the districts regarding the various e-governance initiatives. District administration was asked to provide full support to the team and ensure compliance such as handover of sites on the spot, data validation etc. during the visits. The implementing agency was asked to create a pilot phase of project and ensure a go live of 10 sites in 2 districts (at each level DHQ, BHQ and horizontal sites) no later than 31-03-2012 with an unconditional support from the department and state government.

All these initiatives, identified for the smooth implementation of this project by overcoming the infrastructure hurdles, involved the extensive use of double loop learning at each stage. The entire PMU came out with extraordinary and excellent results within a short span of time and the major milestones achieved can be summarized as below:

 The project agreement between the state designated agency and the implementing agency was finalized and signed in a month’s time after the set up of the PMU.
 The point of presence sites (PoPs) in all the 33 districts of the State of Rajasthan were handed over by the district administration to the implementing agency.
 The Pilot phase of this project including the commissioning of 10 PoP’s in 2 districts i.e. Ajmer and Jodhpur (1 SHQ, 2 DHQ’s, 2 BHQ’s) as well as a horizontal office at each of these levels was completed successfully on 31st of March, 2012 and the entire RajSWAN project is now in the implementation phase in the State of Rajasthan.

Therefore, the above-mentioned study exemplifies “Double Loop learning” wherein the existing policies/processes were modified/re-engineered to make the entire Project Management more efficient and effective.